Police Innovation and Control of the Police: Problems of Law, Order, and Community PDF
Preview Police Innovation and Control of the Police: Problems of Law, Order, and Community
Police Innovation and Control of the Police David Weisburd Craig Uchida Editors with Lorraine Green Police Innovation and Control of the Police Problems of Law, Order, and Community Springer-Verlag New York Berlin Heidelberg London Paris Tokyo Hong Kong Barcelona Budapest David Weisburd, Ph.D. Craig Uchida, Ph.D. Director Deputy Director Center for Crime Prevention Studies National Institute of Justice Rutgers University 633 Indiana Avenue, N.W. 15 Washington Street Washington, DC 20531, USA Newark, NJ 07102, USA and Associate Professor Institute of Criminology Hebrew University Law School Jerusalem, Israel Library of Congress Cataloging-in-Publication Data Police innovation and control of the police : problems of law, order, and community / David Weisburd, Craig Uchida, editors. p. cm. Includes bibliographical references. ISBN 0-387-94013-8 (New York). - ISBN 3-540-94013-8 (Berlin) 1. Community policing - United States. 2. Public relations - Police - United States. I. Weisburd, David. II. Uchida, Craig D. HV7936.C83P651993 363.2'0973 - dc20 92-45633 Printed on acid-free paper. © 1993 Springer-Verlag New York Inc. Copyright not claimed for works by U.S. government employees prepared as part of their official duty. All rights reserved. This work may not be translated of copied in whole or in part without the written permission of the publisher (Springer-Verlag New York, Inc., 175 Fifth Avenue, New York, NY 10010, USA), except for brief excerpts in connection with reviews or scholarly analysis. Use in connection with any form of information storage and retrieval, electronic adaptation, computer software, or by similar or dissimilar methodology now known or hereafter developed is forbidden. The use of general descriptive names, trade names, trademarks, etc., in this publication, even if the former are not especially identified, is not to be taken as a sign that such names, as understood by the Trade Marks and Merchandise Marks Acts, may accordingly be used freely by anyone. Production coordinated by Chernow Editorial Services, Inc. and managed by Christin R. Ciresi; manufacturing supervised by Vinnie Scelta. Typeset by Best-set Typesetter Ltd., Hong Kong. 9 8 7 6 5 432 1 ISBN 978-1-4613-8314-7 ISBN 978-1-4613-8312-3 (eBook) DOl 10.1007/978-1-4613-8312-3 Contents Contributors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ix Part I Introduction 1. Raising Questions of Law and Order ............................... 3 David Weisburd and Craig Uchida with Lorraine Green Part II The Development of Legal Control of the Police 2. Justice Without Trial ..... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 13 Jerome H. Skolnick Law and Order: The Source of the Dilemma. . . . . . . . . . . . . . . . . . . . . . . .. 18 Conceptions and Applications: The Dilemma Complicated ............ 20 The Seclusion of Administration: The Dilemma's Setting. . . . . . . . . . . . .. 23 Law as an Enterprise . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 25 Law Enforcement in Democratic Society . . . . . . . . . . . . . . . . . . . . . . . . . . .. 26 3. Historical Roots of the Legal Control of Police Behavior .... . . . . . . . . .. 32 Samuel Walker The Prehistory of Legal Control: American Policing to 1960 ........... 34 The Watershed: From the Mid-1950s to the Mid-1960s ..... . . . . . . . . . .. 36 The Future of Legal Control: Alternative Scenarios. . . . . . . . . . . . . . . . . .. 45 The Conditions of Successful Legal Control. . . . . . . . . . . . . . . . . . . . . . . . .. 47 Conclusions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 52 Part III Changing Trends in Police Innovation: Toward Community-Based Policies of Crime Control 4. Alternative Futures for Policing. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 59 John E. Eck v vi Contents Changes in Eolicing .............................................. 60 The Rise of Problem-Oriented Policing and Community Policing .. . . . .. 62 Consequences of Community Policing .............................. 65 Consequences of Problem-Oriented Policing. . . . . . . . . . . . . . . . . . . . . . . .. 68 Conclusions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 72 5. Community Policing and the Rule of Law .. . . . . . . . . . . . . . . . . . . . . . . . .. 80 Stephen D. Mastrofski and Jack R. Greene Community Policing, Accountability, and Compliance ................ 81 A Community Policing Compatible With the Rule of Law ..... . . . . . . .. 83 The Risks of an Expanded Community Role. . . . . . . . . . . . . . . . . . . . . . . .. 93 Conclusions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 98 6. The Challenge of Reinventing Police and Community. . . . . . . . . . . . . . . .. 103 Michael E. Buerger The Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 104 Problems of Community and Police Identity ......................... 111 Part IV Problems of Law, Order, and Community in Comparative Context 7. The Soviet Police and the Rule of Law. . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 127 Louise Shelley The Rule of Law: Comparative Perspectives . . . . . . . . . . . . . . . . . . . . . . . .. 129 Sources. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 132 History of Soviet Policing ...... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 132 The Structure of the Militsiia ...................................... 137 Style and Method of Operation .... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 138 Conclusion ...................................................... 143 8. Law Enforcement Innovation and the Rule of Law: Comparative and Historical Perspectives. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 145 William F. McDonald Comparative and Historical Perspectives ............................ 147 Community Policing: Progress or Regress ..... . . . . . . . . . . . . . . . . . . . . .. 152 Innovations in Prosecution .... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 162 Conclusion. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 165 Contents vii Part V Crime Control and Police Control: Future Trends and Problems 9. Why Crime Control is Not Reactionary ............................. 171 Lawrence W. Sherman The Intellectual Assault on Crime Control. . . . . . . . . . . . . . . . . . . . . . . . . .. 172 Flaws in the Anti-Crime Control Literature. . . . . . . . . . . . . . . . . . . . . . . . .. 178 A New Model of Crime Control Values ............................. 184 10. Justice Without Trial Revisited 190 Jerome H. Skolnick Drugs and Crime. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 190 Drugs and Procedural Justice. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 191 Police Professionalism and Bureaucratic Control ..................... 195 The Limits of Law Enforcement ................................... 199 Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 204 Author Index. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 207 Subject Index .................................................... 213 Contributors Michael E. Buerger, Ph.D., Assistant Professor, Department of Public Affairs, University of Wisconsin, Oshkosh, WI 54901, USA John Eck, M.A., Associate Director, Police Executive Research Forum, Washington, DC 20037, USA Lorraine Green, Ph. D., Assistant Professor, Northeastern University, Boston, MA 02115, USA; Senior Research Associate, Center for Crime Prevention Studies, Rutgers University, Newark, NJ 07102, USA Jack Greene, Ph.D., Professor, Center for Public Policy, Temple University, Philadelphia, PA 19122, USA Stephen Mastro/ski, Ph.D., Associate Professor, Administration of Justice, Pennsylvania State University, University Park, PA 16802, USA William McDonald, Ph.D., Associate Professor, Department of Sociology and Institute of Criminal Law and Procedure, Georgetown University Law Center, Washington, DC 20001, USA Louise Shelley, Ph. D., Professor, Department of Justice, Law and Society, The American University, Washington, DC 20016, USA Lawrence Sherman, Ph.D., Professor, Department of Criminology and Criminal Justice, University of Maryland, College Park, MD 20742, USA; President, Crime Control Institute, Washington, DC 20007, USA Jerome H. Skolnick, Ph.D., Claire Clements Dean's Professor of Law, University of California at Berkeley, Berkeley, CA 94220, USA Craig Uchida, Ph.D., Deputy Director, National Institute of Justice, Washington, DC 20531, USA ix x Contributors Samuel Walker, Ph.D., Professor, Department of Criminal Justice, University of Nebraska at Omaha, Omaha, NE 68182, USA David Weisburd, Ph.D., Director, Center for Crime Prevention Studies, Rutgers University, Newark, NJ 07102, USA; Associate Professor, Institute of Criminology, Hebrew University Law School, Jerusalem, Israel Part I Introduction 1 Raising Questions of Law and Order DAVID WEISBURD and CRAIG UCHIDA with LORRAINE GREEN The police in democratic society are required to maintain order and to do so under the rule of law. As functionaries charged with maintaining order, they are part of the bureaucracy. The ideology of democratic bureaucracy emphasizes initiative rather than disciplined adherence to rules and regulations. By contrast, the rule of law emphasizes the rights of individual citizens and constraints upon the initiative of legal officials. This tension between the operational consequences of ideas of order, efficiency, and initiative, on the one hand, and legality on the other, constitutes the principle problem of police as a democratic legal organization. (Skolnick, 1966:6) In the 1960s Jerome Skolnick described the main problem of police in democratic society as one of effectively maintaining order while adhering to legal norms that emphasize constraint on the initiative of police auth ority. Contrary to what was and continues to be a common theme in American images of justice, that law and order are complementary, Skolnick argued that one necessarily is in conflict with the other. To emphasize the rule of law was to place the rights of citizens to be free from undue interference of public officials above society'S right to maintain order. To emphasize order was to place society's need to be free from crime problems above the rights of individual citizens. The problem that Skolnick raised was particularly important in the decade in which he wrote. Although the police were not the cause of the unrest of the 1960s, which clearly lay in problems of race and poverty as well as opposition to the Vietnam War, they were often the flash point around which violence would develop. For example, the Watts riots fol lowed an arrest made by white officers. The police, who were caricatured by students as "pigs," featured prominently in the violence surrounding the 1968 Democratic National Convention in Chicago. The notion that the police were "part of the problem" rather than the "solution" was not an uncommon one two and a half decades ago (see Crawford, 1973; Groves and Rossi, 1970; Lohman and Misner, 1966; National Advisory Commission on Civil Disorders, 1968; President's Commission on Law Enforcement and Administration of Criminal Justice, 1967a, 1967b). 3
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